Operations Performance Measures and 

Management (OPMM) Program Road 

Map 

Publication No. FHWA‐HOP‐14‐012

FINAL: May 1, 2014 
(This side intentionally left blank) 
OPMM Program Road Map     i

May 1, 2014 

TABLE OF CONTENTS 

OPMM PROGRAM GOALS.................................................................................................................. 1

THE “PERFECT WORLD” OF MEASURING CONGESTION ........................................................ 1

CONTENTS OF OPMM PROGRAM ROAD MAP PROJECT DESCRIPTIONS..........................2

COORDINATION ACROSS FHWA TEAMS, DIVISIONS AND OFFICES.................................... 3

OPMM PROJECT DESCRIPTIONS ................................................................................................... 6
(This side intentionally left blank) 
OPMM Program Road Map 1 

May 1, 2014 

OPMM PROGRAM GOALS 

This report documents the FHWA Operations Performance Measures and Management 

(OPMM) Program Road Map covering the 5-year period from 2014 through 2018. The 

Program Road Map aligns with the following FHWA OPMM Program goals: 

 Assist internal/external stakeholders with implementing MAP-21 measure 

requirements and the measurement of congestion/reliability, and 

 Assist internal/external stakeholders with implementing performance 

management for operations. 

The FHWA OPMM Program achieves the goals above by: 

 Providing training, technical assistance and guidance where necessary, 

 Undertaking or coordinating research where gaps exist and archiving 

results/links, 

 Developing congestion/reliability performance measures in urban areas for 

external/internal reports, 

 Coordinating all Office of Operations performance measures activities, and 

 Providing outreach where necessary and providing sources of information on the 

subject matter. 

The projects documented in the Program Road Map directly tie to these OPMM 

Program goals and activities. 

THE “PERFECT WORLD” OF MEASURING CONGESTION 

In December 2013, a peer exchange workshop on the “Perfect World of Measuring 

Congestion” from an operations perspective was conducted to identify the “perfect 

world” of measuring congestion as well as possible projects and implementation efforts 

that could be taken in the next five years to help FHWA and the greater Operations 

community get there. The results of the workshop were used to assist in the 

development of this OPMM Road Map. Many of the projects in the OPMM Program 

Road Map were discussed at the December 2013 peer exchange. 

To stimulate discussion at the workshop, four “white papers” on key performance 

monitoring and management topics were prepared. One of the papers was entitled 

“Framework for Gauging State-of-the-Practice in Performance Monitoring and 

Management.” The paper presents a framework (see Figure 1) to classify best practices 

in operations performance monitoring based on these characteristics: 

 Performance measures (content and form), 

 Performance management (agency culture), 

 Data used, 

 Transportation modes, 

 Facility and trip coverage, and 

 Traveler preferences and tradeoffs consideration. 
OPMM Program Road Map 2 

May 1, 2014 

The framework shown in Figure 1 illustrates four “ribbon categories” of bronze, silver, 

gold and platinum to illustrate maturity level for the given characteristics. The capability 

maturity model illustrated in Figure 1 was inspired by the capability maturity model 

applied to systems operations and management described in SHRP 2 Report L06 

(Institutional Architectures to Improve System Systems Operations and Management) 

(http://onlinepubs.trb.org/onlinepubs/shrp2/SHRP2_S2-L06-RR-1.pdf). 

Observation of practices for operations performance monitoring and management 

provides evidence of a varying degree of the extent that performance data are used in 

decision-making for transportation projects and programs. The platinum level shown in 

Figure 1 was used in the workshop to provide a visual illustration to attendees of what 

the “perfect world” might look like. This framework illustration of the “perfect world” 

guided the workshop and inspired many of the project activities included in this Road 

Map. 

CONTENTS OF OPMM PROGRAM ROAD MAP PROJECT DESCRIPTIONS 

The Road Map includes 18 projects. The projects are grouped around four subject 

areas that are critical to OPMM Program goals: 

 MAP-21 Implementation (6 projects), 

 Performance Measures (Congestion, Reliability) (6 projects), 

 Performance Management (5 projects), and 

 Operations Performance Measures Coordination (1 project). 

The projects are sub-categorized by three project types: 

 Technical Assistance (Guidance/Training), 

 Outreach/Coordination, and 

 Research/Implementation. 

Figure 2 shows the OPMM Program Road Map, including the 18 projects grouped by 

the four subject areas above and referenced to the above sub-category project types. 

The year/quarters when each project is anticipated to take place is also included in the 

Figure. 

The project descriptions that follow include: 

 Project number/title, 

 Subject area, 

 Project type(s), 

 Time period, 

 Project objective, 

 Deliverable, 

 Project lead, 

 Project description, 
OPMM Program Road Map 3 

May 1, 2014 

 Possible coordination opportunities (if applicable – other FHWA Offices, other 

agencies, etc.), and 

 OPMM Road Map coordination (if applicable – an indication of other OPMM 

Road MAP projects that should be coordinated with the subject project); these 

project linkages are also shown by connecting lines between projects in Figure 2. 

In the project descriptions, the project leads are identified with the following acronyms: 

HOP = Office of Operations; 

HEP = Office of Planning, Environment and Realty; 

HPL = Office of Policy; 

TPM = Office of Transportation Performance Management; 

RDT = Office of Research, Development & Technology; 

SSOM = AASHTO Subcommittee on Systems Operation and Management; 

SCOPM = AASHTO Standing Committee on Performance Management; and 

MMUT = Mobility Measures in Urban Transportation, an existing pooled fund study. 

COORDINATION ACROSS FHWA TEAMS, DIVISIONS AND OFFICES 

Although it may be a specialized topic area, the inputs to and outcomes from operations 

performance measurement and management are interwoven through several FHWA 

Offices and Teams. It will be critically important to coordinate and communicate with 

these other Offices and Teams as the Road Map activities are initiated and as they 

proceed. Within each project, a tentative Project Lead is indicated, as well as others 

with whom to coordinate. This listing will be considered as a minimum required and, 

when in doubt, coordination and communication will extend beyond the minimum 

required stakeholders. Plus, outreach for guidance and technical assistance efforts will 

be coordinated with FHWA’s Resource Center Operations Team. 
4 

Figure 1. Illustration of Operations Performance Management Capability Maturity Model for Gauging Curren

Perf.

Measures

(Content):

Limited, project‐specific

“after” study; snapshot of outcome

measures (averages)

Only required

(“siloed”) reporting

Family of output and outcome

measures in some areas of

organization

Perf.

Mgmt

(Culture):

Minimal perf

mgmt interest; performed

only as required

Isolated champions of

perf mgmt; nothing coordinated

across any agency “silos”

Evidence of entire portions of agency

implementing and making decisions with

perf measures; evidence of “data‐

informed” process to select projects

mg

All “ribbon levels” typically use speed, volume and roadway inventory information at spatial and temporal scales of interest. As the 

the “platinum level,” real‐time performance management and decision‐making are possible.

All “ribbon levels” typically use travel time‐based or delay performance measures, including total delay, delay per mile, travel time i

index, etc. Measures are computed at the spatial and temporal scales of interest.

Degree to which performance dataare used in decision‐making

0%

100%

Modes:

Mode areas are

“siloed” in agency; limited

communication

Some ability to

capture/estimate

mode shifts within

“silo” of interest

Ability to capture

mode shifts across

entire agency

Bronze

Silver

Gold

Operations Performance Management Capability Maturity Model (OPMCMM)

Engineering judgment/

intuition/anecdotal

Network

reporting Data‐informed 

Project‐specific

performance

Feedback loop in

decision‐making

Data: “Siloed” datasets;

no connections

Dataset connections possible – requires

programming/processing

Facility and

Trip

Coverage:

Limited temporal/

spatial coverage

in “silos”

Selected modes/facilities

and temporal coverage

All modes, all

all days,

all times covered

Limited ability to

capture trip preferences

or revealed behavior

Some ability in selected

agency “silos” to capture some

trip preferences

Technological methods

identified/used to capture

trip preferences or revealed behavior

Traveler

Preferences/

Tradeoffs:

Evidence of some coordination of datasets

across traditional agency “silos”

outp

rea
5 

Figure 2. OPMM Program Research Plan and Road Map – Calendar Years 2014 through 201

MAP-21 

Implementation

Performance Measures 

(Congestion, Reliability)

Performance 

Management

Operations 

Performance 

Measures 

Coordination

1 Coordinated with offices/agencies beyond FHWA Office of Operations 2 FHWA OPMM may not be the lead

 Outreach/Coordination Research/Implementation Technical Assistance (guidance/training)

2014 2015 2016 2017 

Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 

Subject 

Areas 

R Coordinated Activities T

Coordination with related/relevant programs and subjects; including but not limited to: Connected Vehicle; Planning for Operations; Data Programs/Analysis Tools; Transportation Performance Management (FHWA-wide

 1. Technical Analysis Support for MAP-21 Rulemaking1

2. Pooled Fund Studies: Open-Source Tool for State/Local Agency 

Processing of NPMRDS and MAP-21 Measure Calculation1,2

3. User Forum/Peer Exchange for NPMRDS Users1

4. Synthesis and Guidance on Performance Measures 

Target Setting1

5. Training for MAP-21 Measures1,2

11. Integration of 

NPMRDS with Traffic Volumes1,2 

 12. Performance Measure Reporting Terminology1,2

9. Mobility Measures in Urban Transportation Pooled Fund Study

10. Potential of Private Data Sources1,2

7. Produce Urban Congestion Report

8. Expand/Enhance Urban Congestion Report1

13. Best Practices Online Library on Performance Monitoring and Management1,2

14. Synthesis and Guidance on 

Evaluations of Operations Strategies1,2

15. External Factors in Performance Monitoring1,2

16. Evolving from Operations Performance Monitoring to Operations Performance Manage

17. Operations Performance 

Measures for Optimizing Operational Strategies

18. Measures for Internal FHWA/USDOT Dashboards, Reports, Plans, Etc.1

6. Analysis and Implementation of Reauthorization (as required)1

O

O

O

O

O

R

R

R

R

R

R

R

T

T

T

T

T

T

T

O T

O

R

T

O

O

T

P

P

P

O Policy/Internal
OPMM Program Road Map 6 

May 1, 2014 

OPMM PROJECT DESCRIPTIONS 

Project No./Title #1: Technical Analysis Support for MAP-21 Rulemaking 

Subject Area MAP-21 Implementation 

Project Type(s) Research/Implementation, Technical Assistance 

Time Period 2014 to 2015 

Project Objective: Perform technical analysis in support of MAP-21 rulemaking 

process. 

Deliverable: Technical memorandum. 

Project Lead: HOP, coordinate with TPM. 

Project Description: MAP-21 calls for the establishment of performance measures and 

targets in several program areas. FHWA Office of Operations is responsible for the 

development of the performance measure requirements and calculation procedures for 

the mobility/reliability-related performance measure requirements in MAP-21. Therefore, 

FHWA Office of Operations is developing the Notice of Proposed Rulemaking (NPRM) 

related to these measures. 

As a part of the rulemaking process, a need for technical analyses is expected. The 

technical analyses may include testing/developing different performance measures 

calculation procedures for the mandated measures using available datasets with the 

goal of identifying technically sound, and meaningful methods for inclusion in the 

eventual NPRM. Another area of technical analyses need is arterial performance 

measure calculations and reporting on the National Highway System (NHS). 

OPMM Road Map Project Coordination: Project #5 (Training for MAP-21 Measures); 

Project #11 (Integration of NPMRDS with Traffic Volumes); Project #12 (Performance 

Measure Reporting Terminology). 

 
OPMM Program Road Map 7 

May 1, 2014 

Project No./Title #2: Pooled Fund Studies: Open-Source Tool for State/Local Agency 

Processing of NPMRDS and MAP-21 Measure Calculation 

Subject Area MAP-21 Implementation 

Project Type(s) Outreach/Coordination, Research/Implementation, Technical Assistance 

Time Period 2015 to 2016

Project Objective: Develop an NPMRDS data processing tool for transportation 

applications; develop a MAP-21 performance measure calculation tool. 

Deliverable: Processing tools, user’s guide; sample MAP-21 measure calculations. 

Project Lead: HOP or AASHTO SSOM/SCOPM, coordinate with MMUT. 

Project Description: This project will develop an open-source processing tool using the 

NPMRDS as input. It is envisioned that FHWA would lead this pooled fund study and 

participants would likely include (though not be exclusive to) state DOTs/MPOs that do 

not have sophisticated tools and processing methods in place for performance measure 

calculation. The processing tool may provide quality control and quality assurance 

procedures to “clean up” NPMRDS for missing values. The project will include the 

development of a user’s guide for the processing tool. 

The second part of this project is sample calculations of MAP-21 measure calculations 

using the processing tool that results from this study. This results in the MAP-21 

performance measures being calculated by FHWA and/or the contractor to ensure 

consistency and enable state DOTs/MPOs to focus on the measure results rather than 

the nuances of the measure calculations. 

The measure calculations and reporting on the National Highway System (NHS) for 

MAP-21 includes freeways and arterials. There is particular industry interest in the tool 

for arterial performance measures calculations and reporting. 

Possible Coordination Opportunity: AASHTO SCOPM project #7 (Determining How to 

Use the NPMRDS to Address National Measures); AASHTO SCOPM project #12 

(Understanding and Improving National Benchmarking). 

OPMM Road Map Project Coordination: Project #5 (Training for MAP-21 Measures); 

Project #7 (Produce Urban Congestion Report); Project #9 (Mobility Measures in Urban 

Transportation Pooled Fund Study). 
OPMM Program Road Map 8 

May 1, 2014 

Project No./Title #3: User Forum and Peer Exchange for NPMRDS Users 

Subject Area MAP-21 Implementation 

Project Type(s) Outreach/Coordination 

Time Period 2014 to 2015

Project Objective: Establish and continue webinars and peer exchange among 

NPMRDS users. 

Deliverable: Regularly-scheduled meetings/webinars; maintain on-line 

forum/community. 

Project Lead: HOP, coordinate with SSOM and SCOPM. 

Project Description: This project would establish a “forum” (on-line/virtual community) 

for asking questions, getting answers and sharing experiences related to the use of the 

NPMRDS dataset. In addition to the “always-open” on-line forum, regularly-scheduled 

(e.g., quarterly or semi-annual webinars and peer exchanges) will be hosted as part of 

this project. 

Possible Coordination Opportunity: AASHTO SCOPM project #7 (Determining How to 

Use the NPMRDS to Address National Measures) 

OPMM Road Map Project Coordination: Project #5 (Training for MAP-21 Measures). 

 
OPMM Program Road Map 9 

May 1, 2014 

Project No./Title #4: Synthesis and Guidance on Performance Measure Target 

Setting 

Subject Area MAP-21 Implementation 

Project Type(s) Outreach/Coordination, Technical Assistance, 

Time Period 2015 to 2016

Project Objective: Develop guidebook on performance measure target setting. 

Deliverable: Guidebook. 

Project Lead: HOP, coordinate with SCOPM (has already done work on target setting). 

Project Description: MAP-21 calls for the establishment of targets by state 

DOTs/MPOs for selected performance measures as specified by FHWA. Because of 

this, many state DOTs and MPOs are seeking technical assistance and guidance about 

how to set targets on performance measures. 

This project will perform a synthesis of practice as it relates to performance measure 

target setting. Based upon the lessons learned and experiences documented in the 

synthesis, this project will fund the development of a guidebook of recommended 

procedures for setting targets. It is envisioned that one aspect of setting the targets will 

be understanding and incorporating external factors that can affect performance 

monitoring; therefore, there is coordination required between this effort and OPMM 

Project #14. 

Possible Coordination Opportunity: FHWA Office of Transportation Performance 

Management; SCOPM project #11 (Guidance on Target Collaboration and Target 

Setting Process). 

OPMM Road Map Project Coordination: Project #5 (Training for MAP-21 Measures); 

Project #11 (Integration of NPMRDS with Traffic Volumes); OPMM Project #15 

(External Factors in Performance Monitoring). 

 
OPMM Program Road Map 10 

May 1, 2014 

Project No./Title #5: Training for MAP-21 Measures 

Subject Area MAP-21 Implementation 

Project Type(s) Outreach/Coordination, Technical Assistance 

Time Period 2015 to 2017

Project Objective: Deliver training on guidance/procedures developed in previous 

projects. 

Deliverable: Instructor and participant training course materials. 

Project Lead: TPM and HOP 

Project Description: Several projects in the OPMM Road Map will result in findings, 

case studies and collective experiences of value to FHWA partnering agencies. This 

project will assemble and develop this material into a training course with a focus on 

MAP-21 performance measures for state DOTs, MPOs and other interested 

stakeholders. 

The following projects in the OPMM Road Map will likely provide content for this training 

course: 

 Technical Analysis Support for MAP-21 Rulemaking (Project #1), 

 Pooled Fund Studies: Open-Source Tool for State/Local Agency Processing of 

NPMRDS and MAP-21 Measure Calculation (Project #2), 

 User Forum/Peer Exchange for NPMRDS Users (Project #3), 

 Synthesis and Guidance on Performance Measures Target Setting (Project #4), 

and 

 Integration of NPMRDS with Traffic Volumes (Project #6). 

Possible Coordination Opportunity: FHWA Office of Transportation Performance 

Management. 

OPMM Road MAP Project Coordination: Project #1 (Technical Analysis Support for 

MAP-21 Rulemaking); Project #2 (Pooled Fund Studies: Open-Source Tool for 

State/Local Agency Processing of NPMRDS and MAP-21 Measure Calculation); Project 

#3 (User Forum/Peer Exchange for NPMRDS Users); Project #4 (Synthesis and 

Guidance on Performance Measures Target Setting); Project #11 (Integration of 

NPMRDS with Traffic Volumes). 

 
OPMM Program Road Map 11 

May 1, 2014 

Project No./Title #6: Analysis and Implementation of Reauthorization (as required) 

Subject Area MAP-21 Implementation 

Project Type(s) Outreach/Coordination, Policy/Internal, Technical Assistance 

Time Period 2015 to 2018

Project Objective: Perform analysis and implementation activities as needed for 

transportation bill reauthorization. 

Deliverable: Materials developed as required for reauthorization. 

Project Lead: HOP, coordinate with others as required. 

Project Description: This project is a placeholder for HOP activities needed to inform 

transportation bill reauthorization following MAP-21. This is an activity internal to HOP 

as required. 
OPMM Program Road Map 12 

May 1, 2014 

Project No./Title #7: Produce Urban Congestion Report 

Subject Area Performance Measures 

Project Type(s) Research/Implementation 

Time Period 2014 to 2018

Project Objective: Produce a national Urban Congestion Report every quarter that 

includes all U.S. cities with greater than 1 million population, and produce annual Urban 

Congestion Trends Report. 

Deliverable: Quarterly Urban Congestion Report document, annual Urban Congestion 

Trends Report. 

Project Lead: HOP. 

Project Description: The Urban Congestion Report (UCR) has been produced on a 

quarterly basis and characterizes emerging traffic congestion and reliability trends at the 

national and city level. Since 2008, it has been produced using fixed-point sensor data 

from 19 urban areas. The possibilities to expand sensor coverage have been limited, 

due to state DOT deployments and poor data accessibility. In 2013, FHWA licensed a 

private sector travel time dataset (NPMRDS) that provides national coverage and can 

readily be used to produce congestion and reliability performance measures in urban 

areas. This project will transition the existing UCR data process (using fixed-point 

sensors) to one using this NPMRDS dataset. Once the transition to a better data source 

has been completed, the reporting process will be automated as much as possible to 

produce cost-effective quarterly reporting. 

This project also includes the production of the annual Urban Congestion Trends Report 

summarizing annual mobility and reliability statistics along with case studies of 

successful operational projects or programs. 

OPMM Road Map Coordination: Project #2 (Pooled Fund Studies: Open-Source Tool 

for State/Local Agency Processing of NPMRDS and MAP-21 Measure Calculation); 

Project #8 (Expand/Enhance Urban Congestion Report); Project #11 (Integration of 

NPMRDS with Traffic Volumes); Project #18 (Measures for Internal FHWA/USDOT 

Dashboards, Reports, Plans, Etc.). 

 
OPMM Program Road Map 13 

May 1, 2014 

Project No./Title #8: Expand/Enhance Urban Congestion Report 

Subject Area Performance Measures 

Project Type(s) Research/Implementation 

Time Period 2015 to 2016

Project Objective: Enhance/expand the Urban Congestion Report (UCR) to 

demonstrate current best practices (e.g., measures, visuals, etc.) in performance 

monitoring. 

Deliverable: Final technical report that describes enhancements and supporting 

algorithms and/or graphical elements. 

Project Lead: HOP, coordinate with TPM. 

Project Description: The basic structure and measures reporting in the UCR has been 

unchanged since 2008. Therefore, there is a need to enhance or possibly expand the 

UCR to demonstrate current best practices in performance monitoring. Examples of 

possible enhancements include more/different performance measures, more/different 

visuals and graphics (such as infographics), more interactivity (permitting drilldown 

reporting on specific roads), etc. These enhancements to UCR can then be used as an 

ongoing illustration of best practices to state DOTs and MPOs. 

OPMM Road Map Project Coordination: Project #7 (Produce Urban Congestion Report). 

 
OPMM Program Road Map 14 

May 1, 2014 

Project No./Title #9: Mobility Measures in Urban Transportation Pooled Fund Study 

Subject Area Performance Measures 

Project Type(s) Research/Implementation, Technical Assistance 

Time Period 2014 to 2018

Project Objective: Pooled fund study of FHWA and 13 state DOTs targeting timely and 

pressing urban mobility and performance measurement issues scoped by the sponsors 

every year. 

Deliverable: Various technical memorandums and spreadsheets (as applicable) by 

task. 

Project Lead: HOP. 

Project Description: This study focuses on mobility and reliability performance 

measures, data and issues. Emphasis areas in recent years include emerging data 

sources, freight movement, arterial street mobility issues, reliability performance 

measures and preparing agencies for MAP-21 performance management requirements. 

The products of the pooled fund study are centered on urban mobility issues. Products 

from the study meet a range of needs and include a variety of printed and electronically 

accessible reports, data and information pages, applications, and a generally-accessible 

Internet website. The analysis procedures and resulting performance measures have 

been used in multimodal performance measurement efforts by numerous state DOTs 

and MPOs. 

OPMM Road Map Coordination: Project #2 (Pooled Fund Studies: Open-Source Tool 

for State/Local Agency Processing of NPMRDS and MAP-21 Measure Calculation); 

Project #11 (Integration of NPMRDS with Traffic Volumes); Project #12 (Performance 

Measure Reporting Terminology). 

 
OPMM Program Road Map 15 

May 1, 2014 

Project No./Title #10: Potential of Private Data Sources 

Subject Area Performance Measures 

Project Type(s) Outreach/Coordination, Research/Implementation 

Time Period 2016 to 2018

Project Objective: Identify and document if there is more than just travel time and 

origin-destination data available from private-company data providers. 

Deliverable: Report. 

Project Lead: RDT or HOP. 

Project Description: Several private-sector data providers make speed (travel time) or 

origin-destination available for a number of public-sector performance monitoring 

applications. These data sources have been a “game-changer” for transportation 

analyses due to their relatively low cost and ubiquitous coverage. Likewise, social 

media and other crowd-sourced data sources data might inform performance 

monitoring. 

There may be other areas where private-company or social media data can provide 

other data useful to performance monitoring. For example, another frontier where 

private-company data may facilitate transportation analyses is individual, yet 

anonymized traveler choices. These disaggregate data on traveler choices could further 

be coordinated with traveler information or operational controls to identify the impacts of 

operational projects or programs. 

This project will include engaging private companies and discussing data availability to 

meet additional needs beyond traditional speed or origin-destination data. 

Possible Coordination Opportunity: FHWA Connected Vehicle Program. 

 
OPMM Program Road Map 16 

May 1, 2014 

Project No./Title #11: Integration of NPMRDS with Traffic Volumes 

Subject Area Performance Measures 

Project Type(s) Research/Implementation 

Time Period 2014 to 2015

Project Objective: Document a process to produce 5-minute volume estimates from 

daily volumes to match with the 5-minute travel time information in NPMRDS. 

Deliverable: Technical memorandum. 

Project Lead: SCOPM, MMUT, or HOP; coordinate with HPL (provides HPMS 

volumes). 

Project Description: The calculation of delay is a common performance measure for 

operations performance measures. Estimating delay requires an estimate of volume in 

addition to an estimate of speed (or travel time). This project will combine volumes to 

the NPMRDS speed data set – a process typically called “conflation.” Traffic volumes 

(passenger cars and trucks) would be placed on the NPMRDS speed Traffic Message 

Channel (TMC) network. TMC is the spatial segment definition used by the privatesector for traveler information reporting. 

Roadway volume data typically are in the form of average daily traffic (ADT), while the 

NPMRDS speed data are in 5-minute travel time bins. This project will document the 

process by which 5-minute volume estimates are derived from daily traffic volumes for 

passenger cars and trucks. 

Project budget levels can vary widely due to the miles of system conflated and the 

“grade” of conflation performed (i.e., the extent of quality control), which is a function of 

the application/use for the conflated data. It is also possible that existing conflated data 

could be licensed. 

OPMM Road Map Project Coordination: Project #1 (Technical Analysis Support for 

MAP-21 Rulemaking); Project #4 (Synthesis and Guidance on Performance Measures 

Target Setting); Project #5 (Training for MAP-21 Measures); Project #7 (Produce Urban 

Congestion Report); Project #9 (Mobility Measures in Urban Transportation Pooled 

Fund Study). 

 
OPMM Program Road Map 17 

May 1, 2014 

Project No./Title #12: Performance Measure Reporting Terminology Guidance 

Subject Area Performance Measures 

Project Type(s) Technical Assistance 

Time Period 2014 to 2015

Project Objective: Develop guidebook of consensus on performance measure 

terminology and calculation procedure terminology to provide consistency for 

performance measure reporting. 

Deliverable: Guidebook. 

Project Lead: MMUT or HOP, coordinate with TPM. 

Project Description: There is a broad range of performance measures used across 

transportation agencies for transportation system monitoring and decision-making. 

Often there is not a consistent language when terms such as “delay” or “travel time 

reliability” are used. The lack of terminology consistency means that communicating 

“delay” or “travel time reliability” in one state department of transportation (DOT) or 

metropolitan planning organization (MPO) could have a much different meaning in 

another state DOT or MPO. There is a need for consensus on common transportation 

performance measure terminology so all agencies are speaking a common language 

when reporting performance measures. 

Some of the inconsistency in reported performance measures relates to how the 

measures are computed. For example, an annual planning time index (a travel time 

reliability measure) for a section of road can have a very different value depending upon 

the granularity of the data source and how those data are temporally/spatially 

aggregated and weighted to estimate the annual value. This project will also identify 

consistent terminology for calculation procedures for the measures so there is a 

consistent terminology of describing the reported measures. 

The result of this work will be consistent ways of describing the measures on which 

agencies report. 

OPMM Road Map Project Coordination: Project #1 (Technical Analysis Support for 

MAP-21 Rulemaking); Project #9 (Mobility Measures in Urban Transportation Pooled 

Fund Study).

 
OPMM Program Road Map 18 

May 1, 2014 

Project No./Title #13: Best Practices Online Library on Performance Monitoring and 

Management 

Subject Area Performance Management 

Project Type(s) Outreach/Coordination, Technical Assistance 

Time Period 2014 to 2018 

Project Objective: Develop and support annual maintenance of online library of 

performance monitoring and management best practices. 

Deliverable: Online library of resources. 

Project Lead: TPM, coordinate with HOP. 

Project Description: Many state departments of transportation (DOTs) and 

metropolitan planning organizations (MPOs) are seeking information about best 

practices related to performance monitoring and management. While some of this 

information is readily available in traditional publications and sources, many best 

practices are not readily available, adequately documented, or published. There is a 

need for a “one-stop-shop” of current best practices and lessons learned. 

An example of the final “look and operation” of this online library is the current Intelligent 

Transportation Systems (ITS) Joint Program Office (JPO) knowledge resources 

database (http://www.itslessons.its.dot.gov/). What makes this resource particularly 

user-friendly is that users can search for information about ITS in a variety of ways – 

text searches, keyword searches, browsing lists, by application, goals or even 

geography. It is envisioned that a similar format could be adopted for the performance 

monitoring and management online library to highlight lessons learned and best 

practices. 

Possible Coordination Opportunities: AASHTO SCOPM project #14 (Performance 

Management Clearinghouse of Knowledge Portal); TRB Visualization Committee 

problem statement “Best Practices in Performance Measure Dashboard Design.” 

OPMM Road Map Project Coordination: Project #16 (Evolving from Operations 

Performance Monitoring to Operations Performance Management); Project #17 

(Operations Performance Measures for Optimizing Operational Strategies). 
OPMM Program Road Map 19 

May 1, 2014 

Project No./Title #14: Synthesis and Guidance on Evaluations of Operations 

Strategies 

Subject Area Performance Management 

Project Type(s) Outreach/Coordination, Technical Assistance 

Time Period 2015 to 2016

Project Objective: Develop guidebook of best practices and recommended before-after 

study procedures for evaluating operations strategies. 

Deliverable: Guidebook. 

Project Lead: RDT or HOP. 

Project Description: Understanding the effectiveness of operational improvements is 

critical for effective decision-making and efficient allocation of limited resources. A 

study of the transportation system before and after the introduction of an operational 

strategy or program (i.e., “before-after study”) is a common method for evaluating the 

effectiveness of operational strategies. Transportation agencies commonly perform 

these studies and in this age of rapidly-improving/changing data, there is a need for 

guidance to effectively perform these studies. Typical before-after evaluation questions 

(among others) for inclusion in the Guidebook include: 

 Ensuring the integrity of the data sources in the before-after time period 

analyzed; 

 Incorporating the link between benefit-cost analysis (data and methods) to 

operations strategies (and to performance management as a whole); 

 Establishing a proper evaluation baseline; and 

 Ensuring observed changes in performance measures are due to the operational 

strategy itself and no other external factors. 

This project will synthesize best practices for before-after studies and put forth 

recommended procedures for evaluating operations strategies. 

Possible Coordination Opportunity: Other FHWA Offices – there may be some existing 

guidance. 

OPMM Road Map Project Coordination: Project #15 (External Factors in Performance 

Monitoring); Project #17 (Operations Performance Measures for Optimizing Operational 

Strategies). 

 
OPMM Program Road Map 20 

May 1, 2014 

Project No./Title #15: External Factors in Performance Monitoring 

Subject Area Performance Management 

Project Type(s) Research/Implementation 

Time Period 2015 to 2016

Project Objective: Identify key external factors that can impact performance 

monitoring and provide guidance on the process for tracking external factors. 

Deliverable: Guidebook. 

Project Lead: HOP or RDT. 

Project Description: There are many independent variables (or external factors) for 

which state DOTs, MPOs, and USDOT have little control over. These variables may 

affect performance measures and trends. Therefore, when using performance 

measures for reporting and/or decision-making, these variables must either be 

incorporated or their impact recognized in the performance of the transportation system 

and in the results of project evaluations. 

This project will identify key attributes that should be tracked and reported and provide 

guidance on the process. A background paper entitled “Operations Performance 

Management: How Should External Events and Trends be Considered” was prepared 

for the December 2013 peer exchange on the “Perfect World of Measuring Congestion.” 

The paper identifies some possible examples of these external factors (variables), 

including the economy, societal factors (development patterns, housing costs, school 

quality, generational differences in travel), changes in travel demand, person-volume 

changes, weather, incidents, road work, connected or autonomous vehicles, and modal 

accessibility. 

This project will include example calculations demonstrating the impact on 

measures/decisions of sample external factors (or ignoring them). The results will be 

documented in a guidebook for practitioners. 

OPMM Road Map Project Coordination: Project #4 (Synthesis and Guidance on 

Performance Measures Target Setting); Project #14 (Synthesis and Guidance on 

Evaluations of Operations Strategies); Project #17 (Operations Performance Measures 

for Optimizing Operational Strategies). 

 
OPMM Program Road Map 21 

May 1, 2014 

Project No./Title #16: Evolving from Operations Performance Monitoring to 

Operations Performance Management 

Subject Area Performance Management 

Project Type(s) Outreach/Coordination; Technical Assistance 

Time Period 2016 to 2017

Project Objective: Develop guidebook to assist FHWA partnering agencies in evolving 

from performance monitoring activities to performance management. 

Deliverable: Guidebook 

Project Lead: HOP or RDT. 

Project Description: As described in the Operations Performance Management 

Capability Maturity Model (OPMCMM) at the beginning of this Research Road Map, a 

critical element of the success of an agency in performance management activities is 

the extent to which that agency has embraced a culture of performance management. 

The “platinum level” of the OPMCMM for this characteristic is that performance 

management is ubiquitous in the agency culture, and the entire agency speaks the 

“performance management language,” and this feeds management decision-making. 

This project will document success stories and lessons learned from selected agencies 

to encourage and make the case to agencies to transition from simple performance 

monitoring to performance management and performance-based decision-making. A 

key element of making this case for inclusion in the guidebook is understanding and 

quantifying the “return on investment” for better data to improve decision-making. 

Another key element of this project is demonstrating the link of performance 

management to the planning process, regional data architecture and necessary 

coordination/collaboration efforts in the guidebook. 

Possible Coordination Opportunity: FHWA Office of Transportation Performance 

Management; AASHTO SCOPM project #3 (Linking Investments to Performance 

Outcomes); AASHTO SCOPM #4 (Data Quality and Data Integration); SCOPM project 

#12 (Understanding and Improving National Benchmarking). 

OPMM Road Map Program Coordination: Project #13 (Best Practices Online Library on 

Performance Monitoring and Management). 

 
OPMM Program Road Map 22 

May 1, 2014 

Project No./Title #17: Operations Performance Measures for Optimizing Operational 

Strategies 

Subject Area Performance Management 

Project Type(s) Outreach/Coordination, Research/Implementation, Technical Assistance 

Time Period 2015 to 2016

Project Objective: Document operations performance measures and analyses 

techniques best suited for optimizing operational strategies. 

Deliverable: Guidebook. 

Project Lead: HOP. 

Project Description: A number of performance measures are necessary to understand 

the operation of the transportation system and the effect of operational strategies. There 

is a need for guidance that helps identify which operations performance measures are 

best suited for optimizing specific operational strategies. 

In addition to specific measures, there is also a need to better understand what types of 

analyses are most helpful for understanding the impacts of specific operational 

strategies. For example, if an analyst performs a before-after study after the installation 

of an operational treatment and sees little or no impact, what other data or analyses 

could shed light on the particular situation? This project will help practitioners 

understand what performance measures can be used to optimize operational 

treatments in these situations. 

This project will synthesize lessons learned from case studies as well as from the 

literature to provide guidance to practitioners. 

OPMM Road Map Project Coordination: Project #13 (Best Practices Online Library on 

Performance Monitoring and Management); Project #14 (Synthesis and Guidance on 

Evaluations of Operations Strategies); Project #15 (External Factors in Performance 

Monitoring). 

 
OPMM Program Road Map 23 

May 1, 2014 

Project No./Title #18: Measures for Internal FHWA/USDOT Dashboards, Reports, 

Plans, etc. 

Subject Area Operations Performance Measures Coordination 

Project Type(s) Outreach/Coordination, Policy/Internal 

Time Period 2014 to 2018

Project Objective: Provide operations performance measures for internal 

FHWA/USDOT dashboards, reports, plans, etc. 

Deliverable: Performance measures for internal FHWA reports. 

Project Lead: HOP. 

Project Description: There are a number of FHWA internal reports that require 

operations performance measures as input. This is an on-going activity in the OPMM 

Road Map to supply these measures to these FHWA Offices and Programs for their 

reporting purposes. 

This project will be performed as an internal activity of the FHWA OPMM Program. 

OPMM Road Map Project Coordination: Project #7 (Produce Urban Congestion Report). 

 
 FHWA-HOP-14-012